P1
POLICY REPORT
URBAN STRUCTURE
Date: April 9, 1996
Dept. File No. HR
TO: Vancouver City Council
FROM: Director of Community Planning
SUBJECT: Dundas-Wall "Let-Go" Industrial Area -
Land Use Review and Rezoning Referral
RECOMMENDATIONS
A. THAT Council confirm the M-1 industrial zoning and status of
the lands shown as Area 1 in Figure 1, and remove their
"let-go" designation.
B. THAT the Director of Land Use and Development be instructed to
make application to rezone Area 2 (park) shown in Figure 1
from M-1 to RS-1;
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-law;
AND FURTHER THAT the application and by-law be referred to a
Public Hearing.
C. THAT the Director of Land Use and Development be instructed to
make application to rezone Area 3, shown on Figure 1, from M-1
to C-2;
FURTHER THAT the Director of Legal Services be instructed to
prepare the necessary by-law;
AND FURTHER THAT the application be referred to a Public
Hearing.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of A,
B and C.
COUNCIL POLICY
Truck Routes and Residential Rezoning Policy
Council on March 23, 1982, resolved:
That when planning to rezone areas for residential use, the City be
wary of potential incompatibility with truck routes; that insofar
as possible new or altered residential zones be located away from
truck routes; that in those cases where new or altered residential
zones must be located adjacent to truck routes, environmental
protection such as double glazing, noise berms, setbacks, etc., be
required.
Industrial Land Policy
Council on July 10, 1990, resolved:
That 270 acres be released from industrial uses, and that the
Director of Planning, in consultation with the Director of Housing
and Properties and the City Engineer, review land use options and
recommend new zoning schedules, including residential where
appropriate. (Note: The Dundas-Wall industrial area was included
in these 270 acres.)
Housing Opportunities Strategy
Council on April 9, 1991, resolved:
To identify new housing opportunities in the city by planning for
housing on surplus industrial lands using existing staff.
PURPOSE AND SUMMARY
The purpose of this report is to recommend land use directions and
rezoning for the Dundas-Wall industrial area. The report reviews
current land uses and zoning, presents possible directions for rezoning,
and describes the public consultation process.
The Dundas-Wall "let-go" industrial area is located in northeast
Vancouver. This M-1 zoned area has a mix of industrial and commercial
uses, and park land.
Staff analyzed the existing role and land uses, and propose land use
directions for three sub-areas, as shown on Figure 1 on the next page.
Staff recommend that Area 1 retain its industrial use, with M-1 zoning
(soon to be updated to I-2), as this area serves as a buffer between the
Port of Vancouver and heavy industrial uses, and residential and
commercial uses. Area 2 is park land. Staff
propose that it be rezoned to RS-1, the zoning common to most parks in
the City. Staff propose that Area 3 be rezoned to C-2. It no longer
functions as an industrial area, and C-2 zoning would provide an
opportunity for additional housing, and commercial services compatible
with adjacent residential uses.
Property owners, business tenants and area residents were consulted and
generally support the proposals. If the rezoning of Area 3 is approved,
staff recommend that DCLs be charged for new construction within this
area. (DCLs are the subject of a separate report.)
Figure 1. Land Use, Zoning and Area Boundaries
BACKGROUND
1. Study Area Description and Zoning
The study area is located in the Grandview-Woodland local area. It is
approximately 2 ha (4.6 ac.) in size (net of streets and lanes); it is
zoned M-1 and was designated as "let-go" in 1990. The M-1 zoning allows
for a maximum height of 30.5 m (100 ft.) and a maximum FSR of 5.0.
The area has a mix of industrial, commercial, and institutional uses,
including food manufacturers and wholesalers, King Edward Campus North,
a corner mini-mall, and park land. There is a new development under
construction, at the northwest corner of the study area (former
Lumberland site). This development includes a four-storey building with
artist live/work studios, a service station, ancillary retail, and 3
restaurants.
The study area is bisected by Powell/Dundas Street which is a major
arterial and a truck route.
2. Surrounding Area Description and Zoning
To the north of the study area are CPR rail lines, which are used 30 to
40 times daily and also carry hazardous materials. The Vancouver Port
Corporation (VPC) owns the lands north of the rail lines. The VPC lands
were rezoned from M-2 to CD-1 in 1990 on an interim basis, to provide
for increased City input to the form and compatibility of proposed port
development.
The area to the east and south is zoned RM-3A, and is developed with
four-storey apartment buildings. The CD-1 on Semlin Drive is developed
with two-storey multiple dwellings. Hastings Street, further south, has
a mix of C-2C and C-2C1 zoning, and mixed commercial uses. To the west,
M-2 heavy industrial zoning and uses predominate.
DISCUSSION
1. Land Use Directions and Zoning Recommendations
Staff reviewed the current land uses and role of the study area, and
concluded that it should be divided into three areas, shown on Figure 1.
(a) Area 1
Area 1 serves as a buffer between the existing industrial and port uses,
and the adjacent residential and commercial uses.
Staff recommend that the existing M-1 zoning be retained for this area,
to be updated to I-2 when that district schedule is put in place, and
that the "let-go" designation be removed.
The long narrow portion on the east side of Semlin from Dundas to
Hastings should remain industrial for the following reasons:
- it acts as a light industrial buffer between the heavy industrial area
to the west, and the residential area to the east, thereby reducing
land use compatibility problems; and
- in most cases, the property ownerships straddle the M-1/M-2 zoning
boundary.
The balance of Area 1, to the north, is the former Lumberland site that
is being redeveloped under the existing M-1/I-2 zoning. A change in
zoning would make the new development non-conforming.
(b) Area 2
Area 2 includes existing Oxford Park, Cambridge Park and an adjacent
triangular parcel, as shown in Figure 1. Park Board recently acquired
the triangular parcel for park purposes, recognizing
Grandview-Woodland's deficiency in park space, and to help address the
increased park demand from new development in the Dundas-Wall area.
Staff propose that Area 2 be rezoned to RS-1, as is most park land in
the city. Park Board staff agree with this proposal.
(c) Area 3
Area 3 already contains numerous commercial uses. Currently,
approximately 35% of the land is in industrial use, 52% is in
non-industrial use, and 13% is vacant. Staff believe that mixed
commercial and residential use should be encouraged in this area, for
the following reasons:
- most of the area no longer functions as industrial;
- there is an opportunity for small neighbourhood commercial services
and increased housing; and
- mixed-use would be more compatible with adjacent residential.
Staff have investigated the various mixed-use C zoning schedules, and
recommend C-2 as the most appropriate, because:
- it permits the broadest range of commercial service, retail and office
uses, alone or in combination with residential uses;
- it provides for a scale that is compatible with adjacent multiple
dwellings: maximum building height permitted is 12.2 m (40 ft.).
Maximum density allowed is 3.0 total, of which the residential maximum
is 2.5; and
- it has a set of residential guidelines in place to ensure livability
of residential units, particularly in mixed-use situations and on busy
streets. Other C-2 type zones have less extensive guidelines.
Under the recommended C-2 zoning, five existing businesses (mainly food
processing) could become legally non-conforming. Under C-2, these uses
could continue to legally exist, but could not be expanded.
Of the zoning schedules that provide for mixed-use residential
development, C-2 is the most appropriate. While it still contains the
potential for all-office development, staff research indicates that this
is unlikely here. However, staff note that the all-office potential is
a concern in other C-2 areas of the city. In the future, the creation
of a variation of the C-2 schedule may be desirable to limit this
all-office potential to certain areas of the city. The appropriate time
to pursue this would be with the CityPlan Neighbourhood Visioning, when
communities will have the opportunity to consider the pattern of
commercial uses in their areas.
2. Public Input
Staff wrote all the property owners (8) of Sub-Area 1, notifying them of
the proposal to retain the existing M-1 zoning. There was no response.
With respect to Area 3, staff met with, and surveyed the landowners (9)
and business tenants (12), advising them of the proposal to rezone to
C-2. Six responded--four owners in favour of the proposed rezoning, and
two business tenants opposed to it. One of the opposed tenants stated
that the proposed change would not benefit his processing business.
(a) Surrounding Area
Staff sent notices to 93 property owners and 276 residents living around
Sub-Area 3. The response was two telephone enquiries about the proposal
details, and one letter expressing concern about the loss of private
views. Staff acknowledge this possibility, and note that views could
also be lost with redevelopment under the current M-1 zoning.
(b) Community Groups
Staff notified the Grandview-Woodland Area Council, the Kiwassa
Neighbourhood House, and the Burrardview Neighbourhood Association of
this proposal. Only the latter group expressed concerns, regarding
additional commercial uses in the area attracting prostitution and other
criminal behaviour. Staff met with this group to explain the proposed
rezoning, noting that the amount of commercial development likely to be
built in a C-2 zone (ground floor only) is no greater than that
permitted in the current M-1 zone. Since development would have
strata-title residential above, marketing considerations make it less
likely that 24-hour or late night businesses would be located at grade
in C-2 developments. In addition, the residential uses will add an
element of 24-hour surveillance which the area currently lacks.
3. Development Cost Levies
If Council approves the rezoning of Area 3 at Public Hearing, staff
recommend that Development Cost Levies (DCLs) be charged for new
construction within this area. DCLs are the subject of a separate
report to Council.
SOCIAL IMPLICATIONS
There are no major positive or negative social implications to the
proposed rezoning. There are no implications with respect to the
Vancouver Children's Policy or Statement of Children's Entitlements.
ENVIRONMENTAL IMPLICATIONS
The proposed rezoning will provide opportunities for higher density
housing, close to transit and work places. This may help reduce traffic
demands, with consequent benefits to air quality.
CONCLUSION
Area 1 acts as a light industrial buffer to the heavy industrial area to
the west, and the Port to the north. Staff recommend that it retain its
M-1 industrial zoning. Area 2 is park land. Staff recommend that it be
rezoned to the RS-1 zoning common to most parks in the city. Area 3 has
evolved from an industrial area to an area which is now predominantly
commercial in use. A City-initiated rezoning to C-2, as recommended,
offers an opportunity to allow for additional housing, and some
neighbourhood commercial with guidelines to provide for livability.
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